Description:

Over 100 years of development of heat supply in Russia, a unique system has developed, characterized by the following aspects. Firstly, at present, about 72% of all heat energy is produced by centralized sources (with a capacity of more than 20 Gcal / h), the remaining 28% are produced by decentralized sources, including 18% - autonomous and individual sources. In addition, a small part of the demand for thermal energy (4.5%) is met by the utilization of waste heat from process plants, and the share of heat received from renewable energy sources is very small.

Energy strategy and development of heat supply in Russia

Heat supply

The strategic goals of heat supply are primarily:

Reliable supply of heat to enterprises of the economy and the population of the country;

Improving the efficiency of functioning and ensuring the sustainable development of the industry based on new modern technologies;

Maximum effective use cogeneration possibilities.

To achieve these goals it is necessary:

Develop a program for the reform of heat supply in Russia and create a state system for managing heat supply processes;

Revise the heat supply policy of cities and enterprises in terms of the optimal reduction of centralization in order to increase the reliability of heat supply and reduce the cost of heat transmission;

Develop and implement state regulation measures to ensure the commercial efficiency of district heating to conserve primary energy resources, reduce harmful emissions from energy sources into the environment, and rationally use urban areas.

To solve the accumulated problems in heat supply, which have manifested themselves in recent years, especially in the housing and communal sector and are associated with the operation and further development of heat supply systems (centralized, decentralized, autonomous, individual), it is necessary to implement a set of measures, in particular:

1. In the field of improving the organizational, regulatory and legal framework:

Consolidation of heat networks of energy and electrification joint-stock companies and municipal heat networks within one enterprise (from collectors of heat energy sources to end consumers), which will determine the responsibility of such enterprises for reliable and cost-effective heat supply to end consumers with all the ensuing legal, economic and technological consequences. At the same time, in the process of reforming the housing and communal services, the issues of creating consumer-controlled organizational structures responsible to the population for the provision of heat supply services should be resolved;

Updating, expanding and, if necessary, creating a regulatory framework that regulates the solution of heat supply problems by forces and means of all producers of thermal energy. At the same time, organizational, legal and economic mechanisms for the development and implementation of new comprehensive master plans for electricity, gas and heat supply of cities should be created, taking into account the optimal structure of energy resources, the degree of centralization of heat supply and district heating, which should ensure the minimization of tariffs for the production and transmission of heat energy;

Creation of an information and analytical database and organization of monitoring of all existing heat supply systems to determine the real costs of energy resources spent on heat supply, with subsequent adjustment (if necessary) of directions for the development of heat supply in cities, regions and the country as a whole.

2. In the field of developing new approaches to tariff regulation, demand management and the development of market relations:

Introduction of a system of tariffs for thermal energy with the allocation of rates for capacity and energy, as well as differentiated tariffs for consumption volumes, time of year, number of hours of use of maximum loads, and most importantly - separately for cities (possibly also for individual sources) in order to exclude cross-subsidizing uneconomical heat sources at the expense of highly profitable ones;

Improving the efficiency of functioning of energy sources and heat networks by reducing the costs of the heat supply system as a whole, attracting private investment, creating conditions for turning heat supply into an area attractive for business;

Ensuring the management of demand for thermal energy by the forces and means of consumers (and not heat suppliers, as is still customary in Russia), which will require the mass introduction of automatic control systems at thermal points for end consumers with a phased transition to independent schemes for connecting to the grid and the introduction of quantitative and quantitative-qualitative regulation of the supply of thermal energy, which can be supplied (served) to the network from various sources;

The development of market relations and a change in the ownership structure, which will affect the structure of heat production in the direction of decentralization and less dependence on energy and electrification joint-stock companies.

3. In the field of technical re-equipment of the industry:

Reconstruction, modernization and development of existing district heating systems in order to maximize the use of combined production of electric and thermal energy;

Ensuring the improvement of technologies in the field of heat supply and district heating, reducing the cost of heat production through the introduction of gas turbine, combined-cycle, gas-piston and gas-screw CHPPs of various capacities with the displacement of existing gas boilers into the zone of peak heat loads;

Taking measures to improve the reliability of heat networks by switching to pre-insulated pipes, improving equipment used in centralized and decentralized heat supply systems;

Providing, taking into account the harsh climatic conditions and crisis phenomena in the municipal heat supply sector, in each heat supply system, reserve capacities and fuel reserves, depending on the duration of ultra-low temperatures and their absolute value.

Since heat supply in Russia is of great social importance, improving its reliability, quality and efficiency is a non-alternative task. Any failures in providing the population and other consumers with heat have a negative impact on the country's economy and increase social tension. Therefore, in the perspective under consideration, the state should remain the most important subject of economic relations in the industry.

One of the most important tasks of the state energy policy is the guaranteed supply of energy resources to the population, socially significant and strategic facilities at affordable prices.

The relatively high level of spending on energy supply in the incomes of low-income strata of the population, the insufficient level of social support for reforms necessitate an active social policy, the purpose of which is to minimize the negative consequences of rising prices for energy resources, including heat and hot water supply, for socially vulnerable groups of the population .

The planned levels of development of heat supply, radical modernization and technical re-equipment of the industry will require a significant increase in investment (Fig. 6). The main source of capital investments will be the own funds of industry enterprises, state (municipal) financing, borrowed funds, including those raised on the terms of project financing.

Creating conditions for business development in energy efficiency and heat supply is the main task. To solve it, it is necessary to develop and adopt a number of legislative acts.

Firstly, the Law “On Heat Supply”, which regulates civil law relations that develop in heat supply, relations related to the regulation of activities for the organization and operation of heat supply, as well as the responsibility of executive authorities at all levels for the reliability, quality, efficiency and availability of heat supply . According to the work plan of the Government of the Russian Federation, the mentioned draft law should be developed in the fourth quarter of 2003.

Secondly, the introduction of amendments and additions to the law “On Energy Saving”, specifying the mechanisms for the implementation of its individual articles, primarily related to the federal budgetary sphere, the legal basis for the creation of regional and municipal energy saving funds, benefits in the implementation of energy-saving measures and administrative responsibility for irrational use of fuel and energy resources. The concept of the draft law is to be presented to the Government of the Russian Federation in the fourth quarter of 2003.

These bills and the regulatory documents necessary for their implementation, in our opinion, should be developed and adopted no later than 2004.

I. GENERAL PROVISIONS

In accordance with the requirements of the Federal Law of June 28, 2014 No. 172-FZ "On Strategic Planning in the Russian Federation", this sectoral strategy should define the goals and objectives of state and municipal heat supply management. Combining all the main problems of the industry in one document makes it possible to move from the practice of individual government instructions to systematic work on a set of interrelated problems.

Heat supply is largely regulated not only by general and local sectoral legislation, but also by sectoral legislation of related industries, including housing, water supply, fuel supply and electric power industry. In heat supply, the task of increasing the volume of marketable products is not set, since the quality of heating and hot water supply can be ensured by reducing the consumption of thermal energy through the modernization of connected buildings. For these reasons, this strategy considers some of the problems of related industries and sectoral issues of energy conservation.

The strategy was developed for a period of 5 years, which is determined by the possibility of its fairly rapid implementation to solve the accumulated problems and the need to set fundamentally different tasks after that. To overcome the possibility of obsolescence of the provisions of the Strategy, its annual updating is envisaged.

1.1. Russian heating system

Over 115 years of development, the Russian heat supply system has become the largest in the world, providing more than 40% of the world's centralized heat production. It consists of 50,000 local systems served by 18,000 enterprises. Thermal energy consumption is about 2 billion Gcal per year, including 1.4 billion Gcal from centralized systems. The thermal energy market is one of the largest single-product markets in the country.

Since the start of market reforms in the 1990s, the heat supply industry has generally been seen as essential but secondary to the electricity and fuel industries. But, gradually, the realization of its key role in the country's economy came:

§ The production of thermal energy is one of the supporting sectors of the Russian economy; in our climate, heat supply provides the very possibility of the life of citizens.

§ 320 mln tce, or 33% of primary energy consumption in Russia, is spent on heat energy production, and taking into account independent heat supply, this share is close to 50%, which is comparable to Russian hydrocarbon exports.

§ The need to bear the burden of space heating costs reduces the competitiveness of domestic enterprises. The population pays for heating and hot water supply more than for all other HKH services combined.

§ Combined production of heat and electricity, regardless of the type and service life of heating equipment, has an energy efficiency that exceeds all the most modern and even promising methods of generating electricity. Reducing the share of cogeneration can lead to a significant increase in the cost of electricity.

§ Heat supply is gradually becoming an investment-attractive industry, in which the share of private owners and operators is rapidly increasing.

§ Cogeneration of heat and electricity at CHP is a relatively “clean” industry and its development is supported developed countries on a par with non-fuel energy. International restrictions on the use of "dirty" energy in the foreseeable future will not affect gas cogeneration, which provides electricity and heat to local urban systems.

In recent years, fundamentally different models for the development of heat supply in the country have been actively discussed.

1.2. Purpose and objectives of development

The aim of the development of the industry is to provide universal high-quality and reliable heat supply in the most economical way. Due to the long period of use of the cost-based tariff model, the industry has accumulated significant potential for cost reduction, it is important to ensure the development of heat supply without a significant increase in tariffs and the flow of investments from unregulated industries.

The sectoral regulation system should ensure the formation of an efficient market for heat supply and cogeneration, while maintaining a balance of interests of business entities and consumers, including the following tasks:

§ Reduction in the number of regulations and simplification of state regulation, ensuring the simplicity, sophistication and long-term nature of legislative innovations.

§ Tariff deregulation as an anti-cost mechanism for equalizing the tariff base, with its increase in under-tariffed organizations by reducing it in organizations with excessive tariffs.

§ Creation of economic incentives for heat supply organizations to save energy among consumers.

§ Ensuring the competitiveness of CHPPs, preventing their decommissioning with compensation costs exceeding the cost of reconstruction.

§ Introduction of competitive formalized procedures for the supply of thermal energy from several sources to a single heat supply system, the formation of queue rules at equal supply prices.

§ Return of regulation of relations related to hot water supply to the legislation on heat supply.

§ Delivery of a resource "on the wall" of an apartment building with the possibility for residents to independently choose a payment distribution method from a set of recommended ones.

§ Raising the technical level of heat supply systems, transition to a 50-year service life of newly laid heating networks.

II. RELIABILITY AND QUALITY OF HEAT SUPPLY

2.1. Reliability monitoring

Since 2010, the Ministry of Emergency Situations has been registering 2 to 5 emergencies per year in heat supply systems. Compared to the 90s of the last century, their number has decreased tenfold.

At the same time, according to Rostekhnadzor, in recent years, the reverse process of increasing the number of significant consumer outages has begun. If during the heating period of 2010-2011 Rostechnadzor registered 8 emergencies according to information from the regions, then in the 2015-2016 season there were 136 of them (of which 3 were investigated by Rostechnadzor), and 348 in 2016-2017 (of which 8 were investigated by Rostechnadzor).

According to the monitoring results of the Ministry of Construction of Russia in the heating season of 2016-2017, the accident rate in heating networks decreased by 40%, and in hot water supply networks by 33%.

In accordance with the data of the "Efficiency rating of heat supply systems" formed by the Ministry of Energy of the Russian Federation, in 2017 in 19 regions of the Russian Federation there was a zero accident rate of heat networks (including St. Petersburg), which cannot be considered reliable.

According to the Russian Federal State Statistics Service, the number of accidents at heat supply sources and heat networks in 2016 amounted to 5880 against 5799 in 2015.

More reliable information is contained in the heat supply schemes of specific settlements, at the same time, in the presence of several federal information systems, it is necessary to recognize the obvious imperfection of monitoring the reliability of heat supply. Only major long-term outages are known with certainty, as they are widely covered in the media.

The general condition of the heat supply system equipment can be assessed as relatively reliable. At the same time, in several large cities, the damage rate of heating networks has reached the level of 3-5 damage per year per 1 km. networks in two-pipe calculation. The average service life of backbone networks is increasing everywhere.

The problem of many settlements is the unpreparedness of the complex of energy supply systems for off-design or even design cooling and ignoring this problem by both market participants and authorities at all levels.

The normatively fixed state and municipal system of reliability management in heat supply consists of several components:

Development and approval of heat supply schemes, including reliability calculation;

Analysis and assessment of heat supply systems by the executive authorities of the constituent entities of the Russian Federation with the division of systems into highly reliable, reliable, unreliable and unreliable, and their determination of a system of measures to improve reliability for unreliable and unreliable systems;

Checks for readiness for the heating period of settlements, heat supply and heat network organizations, consumers;

The functioning of the emergency warning system, including the monitoring system, probability assessment, possible scenarios, prevention measures, assessment of readiness for operational localization and elimination of consequences.

In most settlements, the above actions are carried out without professional support, through working groups and headquarters, and to a large extent are not carried out at all. In 2017, out of 4,705 municipalities, 3,736 or less than 80% received heating season readiness passports, but for most of them, even an assessment of the probability of major accidents was not carried out. As a result, no one knows which settlement may have problems next winter.

Given the significant social and economic consequences of accidents in heat supply systems, it is necessary to organize qualified continuous work at the federal and regional levels in the following areas:

Automated monitoring and forecasting of the reliability of heat supply systems with the determination of the integral indicator of reliability and the assessment of significant factors affecting it;

Preparation of an annual report and operational information for authorities and organizations;

Development and support of operational sets of measures to improve reliability in the most problematic settlements, with the priority of using internal reserves;

Development and implementation of standard improvement projects;

Operational development and support of accident elimination plans;

Creation of the institution of anti-crisis managers;

Examination of schemes, programs, packages of measures, acts of readiness for problematic settlements.

2.2. Checking readiness for the heating season

The Law "On Heat Supply" defines the obligation to check the readiness for the heating period of municipalities, heat supply and heat network organizations, consumers of heat energy. The function of checking municipalities is entrusted to Rostekhnadzor, and the verification of heat supply organizations and consumers should be organized by municipal authorities.

The current Rules for assessing readiness for the heating season, approved by the Russian Ministry of Energy, require an assessment not only of the amount of repair work carried out, as was previously accepted, but also the readiness to perform production functions that ensure the reliability of heat supply. Municipalities were not prepared to improve the quality of inspections. At the same time, most heat supply organizations can provide high-quality preparation for the heating season and the reliability of heat supply without detailed verification procedures by state and municipal authorities.

To eliminate redundant bureaucratic and control procedures, a risk-based approach to assessing the readiness of subjects for the heating season should be introduced, based on the results of monitoring reliability indicators and declarations, rather than on physical checks.

If a business entity provides false information, significant penalties should be provided.

Object checks must be carried out necessarily in relation to unreliable and unreliable systems, as well as reliable systems with negative dynamics of indicators.

Preparation programs for the heating period for settlements with unreliable and unreliable systems should include the calculation of the forecast of reliability factors for the next heating period and be agreed with Rostekhnadzor to confirm the sufficiency of the planned activities. If, during the check of readiness for the heating season, failure to comply with the planned measures is revealed, then further actions should be taken within the framework of the regional system for the prevention and elimination of emergency situations.

An obligatory part of the system for preventing and eliminating emergencies should also be the study of possible scenarios of cascade accidents, starting with restrictions on any type of energy resources. In all settlements, once a year, complex emergency response training should be carried out according to various scenarios of emergency situations in the energy supply, with the development of possible chains of cascading development of accidents in interconnected systems of heat, electricity, water and gas supply.

Over the past 25 years, there have been no studies of the fuel balance and the structure of energy capacities from the point of view of integrated energy security. Territorial balances of thermal and electric power are not calculated for conditions of restriction or complete cessation of gas supply. There is no comparison of the given costs for the creation and operation of devices for providing reserve fuel and the alternative development of the gas transmission system, including the use of LNG.

At the level of the state and regions, it is necessary to carry out these studies and develop a set of measures to correct the situation.

2.3. A set of measures for unreliable systems

Classifying the heat supply system of a settlement as unreliable usually means such a level of its condition at which the heat supply organization itself is no longer able to turn the tide. Usually changing the operator does not help either.

For such systems necessary condition recovery is the development of a high-quality heat supply scheme as an anti-crisis plan with the inclusion of a set of measures to reorganize the organization (management, priority measures, use of internal resources) and ensure current reliability. Schemes of such settlements must undergo an examination in the authorized federal authority or in a professional organization determined by it.

If it is impossible to attract external investors, for the implementation of the developed measures, funds from budgets of all levels should be attracted, according to the procedures for preventing emergency situations.

2.4. Industrial safety and technical supervision

Federal Law No. 116-FZ of July 24, 1997 “On Industrial Safety of Hazardous Production Facilities” regulates the reliability of only individual elements of heat supply systems. Most of the equipment of these systems falls under the law, as it either works under pressure or is classified as explosive. According to the accepted classification, the vast majority of heat supply system equipment belongs to category IV hazardous production facilities. For him, it is only obligatory to provide Rostekhnadzor with information on the implementation of production control.

It is necessary to clearly distinguish between the concepts of reliability and safety:

Reliability of heat supply is determined by the aggregate state of heat supply systems and is a market category, and the requirements for the level of reliability should be set by those who pay for it, i.e. consumers choosing the category of reliability available for payments;

The safety of heat supply processes is determined technical condition specific equipment, minimum safety requirements should be determined by the State.

For power supply organizations and investors, a significant external risk factor is the unpredictability of the emergence of new requirements of supervisory authorities that are not secured by tariff financing. The impracticability of these measures without an additional financial source contributes to corruption.

It is necessary to introduce a procedure for linking the approval of investment programs and tariffs with the appearance of regulations requiring significant funding. New requirements should have a reasonable timeframe for implementation.

2.5. Requirements for the quality of heat supply, fixed in the terms of the contract

To protect the rights of consumers, on the one hand, and to prevent unreasonable antimonopoly prosecution of heat supply organizations, on the other hand, it is necessary to develop standard forms of contracts as an annex to the "Heat Supply Organization Rules", clearly defining the responsibilities of both parties.

Reliability and quality are provided in the interests of consumers. Consumers must order a level of quality and reliability and receive compensation if it is violated. It is necessary to provide for the establishment in contracts of commensurate compensation for violations of the quality and reliability of heat supply, paid directly to affected consumers. The size of these fines should encourage heat supply organizations to maintain the required level of reliability and quality, including through repair campaigns, work with contractors, system setup, and so on.

At the same time, it is necessary to abolish all other penal coefficients that exist today, as bureaucratic and inefficient.

2.6. Additional measures to overcome negative trends affecting the reliability of heat supply

Measures needed:

§ In recent years, the number of cases of refusal of industrial enterprises to supply heat to residential areas has increased manifold due to the establishment of unreasonably low tariffs, as well as due to excessive state control and regulation. It is difficult for municipalities to find an investor for the construction of replacement heat sources and funds to compensate for losses from the continuation of heat supply activities for a three-year legal decommissioning deferral period. For organizations that supply heat to third-party consumers as a non-core activity, it is necessary to have the right to a simplified tariff setting method (an analogue method or a long-term tariff formula) and limit the number of control checks to a maximum of one comprehensive check per year.

§ The transfer of municipal property on lease or concession regularly leads to the emergence of pseudo-investors who specialize in controlling financial flows and litigation with the grantor. Instead of improving reliability, local governments have new problems and return to municipal management. Since today the high-quality preparation of a lease or concession agreement is a long and expensive process, it is necessary to organize a free methodological assistance municipalities, including the formalization of contracts and the replication of best practices.

§ An increase in the number of unprofitable heat supply organizations determines the lack of funds for repairs and modernization of equipment. Introduced in 2015, the standard of business profit is nominally 5% of the GER minus fuel and losses, which actually corresponds to 1.5-2% of the NGR. This is clearly not enough today, taking into account the real payment discipline, inflation and other industry factors. The solution to the problem lies in the transition to the principles of benchmarking and tariff formulas.

§ Mass violations of the quality of heat consumption, including overestimation of the heat carrier flow rate and the temperature of the return heat carrier, lead to a corresponding imbalance of the entire centralized heat supply system. It is necessary to define normatively the features of the application of penalties for violating the regime of consumers in the form of fixed multipliers to the cost of consumed thermal energy. The methodology for fixing the violation and the conditions for exempting the consumer from paying sanctions should be determined.

§ The decrease in the professional level of heads of heat supply organizations has become a mass phenomenon in recent years. It is necessary to renew the concept of a “mandatory minimum of knowledge” for top managers with remote examinations for non-affiliated persons, and to restore qualification categories.

III. TARIFF REGULATION

3.1. Balancing the interests of suppliers and consumers

With the Russian climate and the level of solvency of the population, it is impossible to solve the problems of heat supply only by increasing the investment component in tariffs. It is necessary to take all possible measures to stimulate processes that provide a real reduction in system costs with reasonable reliability and quality:

Reducing supplier costs, including extending equipment life;

Reducing the number of intermediaries, consolidation of heat supply and heat network organizations;

Support for energy saving among consumers with partial tariff compensation, with a decrease in the level of payments;

Circuit optimization, including competition of projects and organizations, development of cogeneration, reasonable decentralization, etc.

The tariff is the price of a unit of goods, corresponding to its quality, but during the entire period of state regulation of tariffs in heat supply, it was not the goods that were estimated, but the costs of the process of its manufacture, which led to the practical impossibility of stimulating an increase in the efficiency of the process itself. The specifics of the heat supply industry also had an effect, consisting primarily in the fact that the product itself - thermal energy - does not have quality criteria, they are indirectly described through the characteristics of the coolant and system reliability.

In 2010, with the adoption of the 190th Federal Law "On Heat Supply", a transition to interconnected sectoral legislation was launched. Despite numerous shortcomings, the sectoral nature of the law made it possible to lay down fundamental structures that are beyond doubt today:

Availability of several goods and services paid for at their own tariffs (thermal energy, coolant, power, reserve power, transmission service, connection service);

Organization of commercial accounting of supplied goods;

The concept of a heat supply organization, a single heat supply organization, a heat network organization, an understanding of who buys what from whom and is responsible for what, contractual structures between them and with the consumer;

Rights and obligations of the consumer;

The status of heat supply schemes that determine the tariff consequences of fundamental decisions on system optimization, its development, load distribution, liquidation of facilities, decentralization.

Taking into account social restrictions on the growth of tariffs, the impossibility of taking into account all the desired investment needs in them, municipalities are given the right to find a balance between quality / reliability - development - price through the heat supply scheme.

The law defines the principles, methods and ways of regulating tariffs, that is, it is a full-fledged sectoral law that determines for what exactly, how much and to whom the consumer or participant in the heat supply process pays. Attempts to return to non-industry universal methods of tariff formation must be recognized as unreasonable due to the restoration of non-commodity structures incomprehensible to consumers.

The current system of curbing the growth rates of tariffs for utility resources without the practice of systematic analysis of the tariff values ​​themselves led to negative consequences for both consumers and heat supply organizations:

In some settlements, communal consumers (the population) turned out to be completely unprotected from tariffs set at an inadequately high level, since the state restrains, first of all, the rate of growth of tariffs, and not its size;

In others, heat supply organizations found themselves in conditions of constant underfunding of repair and investment programs;

Industrial consumers are forced to bear the burden of cross-subsidization due to the artificial limitation of utility tariffs.

Today, despite all the innovations, the main approach in tariff regulation remains the indexation of certain types of expenditure as a percentage of the achieved level. Such a system financially rewards the worst organizations that already have a high tariff. There is an anti-market rule, according to which, in order to justify further growth of a high tariff, it is necessary to constantly maintain a low level of reliability and a high level of costs. High tariffs do not provoke improvements, but the need to maintain high costs. The basic principle of tariff level fairness is violated, according to which a higher tariff should correspond to a higher level of quality and reliability.

All this dictates the need to switch to fundamentally different methods of tariff formation, based on principles that are understandable to the consumer and perceived by him as fair.

3.2. Basic principles

The basis for pricing in the industry should not be regulation based on the historically established tariff base, when the regulator is the main one, but the formation of tariff formulas that allow the consumer or municipality to choose the tariff menu and guarantee that tariffs correspond to the level of quality and reliability of heat supply. At the same time, the procedure for approving prices (tariffs) is radically simplified with the exclusion of a significant part of bureaucratic processes.

It is possible to form a tariff formula based on:

Comparisons with existing analogues corresponding to the level of quality and reliability;

Rationing of fuel, electricity, equipment service life and other parameters (reference costs), for example, a two-part tariff: the energy rate is calculated from the agreed specific consumption of fuel, electricity and water for the sale (or supply) of a unit of thermal energy; the capacity rate is determined by the standard per service unit (m³, m² of connected buildings or the number of service units);

The limit of the possible price for consumers, based on the cost of alternative methods of heat supply or heat supply in this particular system.

The additions made in 2017 to the law “On Heat Supply” with pricing based on the “alternative boiler house” model laid the foundation for the legitimacy of pricing based on tariff formulas. Moreover, several types of tariff formulas were introduced simultaneously in price zones:

Limiting the price of thermal energy for consumers by the calculated level;

Price indexation for heat transmission services in proportion to the change in the maximum price level for heat energy (if there are disagreements);

Limiting the price of heat energy purchased for the purpose of compensating for losses in heat networks, according to the price level for end consumers;

Determination of prices for thermal energy, heat carrier and transmission services based on economically justified costs in accordance with accounting legislation (in case of suspension of decommissioning);

Establishment of prices for thermal energy and coolant from sources, taking into account only fuel costs and annual indexation in proportion to the change in fuel prices (for the period of consideration of disagreements in court).

Effective pricing should be based on the fact that the level of the tariff, on the one hand, should be sufficient to ensure the competitive quality of heat supply, on the other hand, it should not provoke the consumer to look for alternatives. There are several dangerous tariff levels for each district heating system when competition between different types of alternative heat sources intensifies (starting from apartment heaters hot water), that is, there is a tariff range in which tendencies to disconnect from DH appear and intensify. The cost of alternative methods can also be considered as a tariff indicator - a limit level above which prices in the heat supply system cannot be set.

The use of tariffing methods based on tariff formulas and indicators should contribute to the emergence of real incentives to reduce costs, and different tariff formation methods will be optimal for different heat supply systems:

§ The benchmark cost method works well for maintaining the current level of systems, but is bad for development and refurbishment, as it eliminates incentives for heat supply organizations to spend on development with a decrease in the number of service units. An attempt to normalize the organization as a whole is not feasible due to the infinite variety of specific features (load density, water intake scheme, decentralization volume for hot water supply and heating, a complex of types of fuel consumed, the degree of redundancy, a piezometer, climate, etc.), so it is possible to standardize reference costs only for the reference state of a separate heat supply system with an additional tariff structure for accounting for investment costs to achieve the reference state. All transient processes (rehabilitation, modernization, increase in system capacity) cannot be assessed using the analogue method, since they are determined by a variety of competitive technical and management solutions.

§ The “alternative boiler house” method is well suited for settlements with a single heat supply organization, since in this case there is no conflict of interest. It is necessary to organize monitoring of the implementation of the model in order to promptly fix possible risks of abuse of the monopoly position by the ETO, assess the effectiveness of the procedures for considering disagreements between market participants and reduce the investment activity of organizations that have not received the status of the ETO.

§ The method of analogues or marginal indicators, with simplified registration procedures, is preferable for small organizations that do not have the ability to competently conduct a tariff campaign.

Mixed designs can also be used, for example:

§ the cost of operating one conventional unit of the heat network according to the method of reference costs (the length of heat networks per load unit depends on an objective parameter - building density), having formed the prices for transmission services;

§ the cost of fuel and the cost of operating energy sources according to the method of analogues - indicators achieved on similar equipment.

It is necessary to legally provide for the possibility of using different methods tariff setting. It is also required to put into practice voluntary long-term regulatory contracts in the form of tariff and investment agreements between heat supply and heat network organizations, the regulator and a municipal or regional authority, which provide for the fixation of a tariff formula without state restrictions on its type and design.

3.3. Tariff subsidies

Legislation on limiting the payment of citizens by limiting indexes in its current form implies an artificial restriction of tariffs for all citizens with compensation from the budget for the difference between the reasonable tariff and the amount that is conditionally recognized as affordable. In this form, compensation is provided to all consumers of the resource, regardless of whether they need support or not.

To eliminate the above disproportions, it is necessary to ensure the transition to an exclusively targeted system of social support for citizens in need in the provision of housing and communal services, the payment for which is formed mainly by payments for heat supply and hot water supply.

Only a targeted support system provides a number of key advantages compared to the current tariff containment system for all citizens:

A clear understanding of the number of citizens in need of support, which makes it possible to conduct a more optimal budget policy and more efficiently allocate limited funds, which is especially important during periods of economic downturns;

Maintaining the cost of resources at a real level stimulates an increase in energy saving, and with total tariff subsidies, saving mechanisms will never be sufficiently effective.

Only the transition from the system of subsidies to targeted subsidies will ensure a relatively painless transition to a reasonable level of tariffs in cities with an underestimated level of the tariff base.

The procedure for obtaining subsidies for those who need them should be simplified as much as possible and become integral part the current system of housing subsidies.

3.4. Distribution of fuel in the production of heat and electricity at CHPPs for the purposes of tariff regulation

Since excessively low tariffs are mostly set for large CHP-based heating systems, energy companies use all available methods to increase them, in particular the “physical” method of allocating fuel costs in combined heat and power generation. With such a transition, formally, the fuel consumption for the production of thermal energy often turns out to be higher than at a modern boiler house, which prevents the expansion of heating zones in heat supply schemes. The introduction of modern tariff structures with the transition to the real level of tariffs will make it possible to abandon structures that contradict the laws of physics.

The distribution of fuel, in terms of the combined production of heat and electricity, should be carried out on the following principles:

§ In order to ensure the long-term competitiveness of district heating, the specific fuel consumption for heat generation should be lower than in the best boiler house.

§ To ensure the competitiveness of CHPPs in the electricity market, the specific fuel consumption for electricity generation should be lower than the actual specific costs of the best condensing CCGT TPP.

Only in this case CHP will be competitive in both markets.

In practice, this problem is solved by fixing the specific fuel consumption for electricity, with the calculation of the specific consumption for thermal energy according to the characteristics of the station equipment.

When a part of the CHPP equipment is operating in the boiler room mode (without power generation), specific costs should be taken as for the boiler house and “not mixed” with the total ones. This today leads to a “paper” increase in the specific fuel consumption for electricity generation and the withdrawal of supposedly inefficient equipment.

For condensing power generation at CHPPs, specific costs should be taken as for condensing GRES.

3.5. Two-part tariff

Currently, in the vast majority of settlements, a single-rate tariff is set for thermal energy.

The introduction of two-part tariffs (rates for thermal energy and for power) will make it possible to achieve the solution of several tasks that are relevant for heat supply systems:

Optimization of costs for the maintenance of thermal infrastructure, decommissioning of excess generating capacities and heating networks;

Stimulating consumers to equalize the contractual and actual connected capacity with the release of capacity reserves that can be used to connect new consumers without creating redundant infrastructure;

Alignment of financial flows of heat supply organizations due to the "capacity" rate, evenly distributed throughout the year;

Simplification of the transition to billing according to the tariff formula that does not require annual approval;

Stimulation of heat supply organizations to save energy among consumers;

Transfer of boiler houses to the peak operating mode with CHPP without losses for their owners and with significant system-wide savings.

When transferring a small part of fuel costs from a variable to a fixed part of the tariff, you can get an unusual result for heat supply organizations - the less heat the connected buildings consume, the better it will be for the supplier, that is, he really becomes interested in energy saving.

There are no methodological developments for the mass introduction of two-part tariffs. It is necessary to implement them and create opportunities for choosing from three fundamentally different types of tariffs. They have only a variable rate in common, which is mainly proportional to the specific fuel consumption per 1 Gcal.

Options for implementing a two-part tariff:

With a power rate proportional to the heat load (maximum power consumption);

With a power rate proportional to the maximum circulation flow of network water;

With a power rate proportional to the area (or volume) of the premises of the connected buildings.

It is necessary to analyze the pros and cons of the options and develop a methodology for setting two-part tariffs, taking into account the choice of option in accordance with the specifics of the settlement.

The power rate must take into account the availability of a workable reserve fuel system.

It is also necessary to recognize the actual losses in the grids on a one-time basis with their assessment according to an objective method with the simultaneous introduction of reduction indicators by years.

3.6. Connection fee

Practiced for a long time, the method of issuing individual technical conditions for their implementation by the connected person, took into account all the costs of connecting a particular consumer. For many developers, the costs were excessive, while for others they were low. Developers with high fees often chose the option of building local heat sources or arranging apartment heating. Averaging the connection rate within a reasonable (normalized) distance from the connection point ensures transparency and predictability of the developer's costs and reduces the number of refusals to connect to district heating.

The current system of standardized tariff rates, depending on the diameters and types of newly laid heating networks, has not led to the averaging of the connection fee. With the same connected power and network length, the board can vary significantly depending on the specific design (set of diameters, channel and channelless laying), which contributes to the emergence of corrupt agreements.

The transition to standardized rates depending on the connected power will eliminate the above disadvantages. The introduction of additional multiplying factors, when the distance from the connection point to the connection point is more than the established standard length, will prevent economically unreasonable connections and reduce the number of connection failures.

The introduction of an average connection fee can undoubtedly be attributed to positive decisions. It can be set at a “fair” level, i.e. without greatly inflating heat energy tariffs (not fully shifting business problems to social consumers), and without overcharging the cost of building a competitive local heat source.

It is necessary to introduce a standard distinction between the work performed at the expense of the connection fee and at the expense of tariff revenues. In the connection fee, include the costs of:

Construction of a branch to the consumer;

Increasing the diameters of quarterly heating networks (up to 300 mm) from the outlet chamber on the main networks;

Construction of new main heat networks, justified only by the connection of new consumers.

By separating the types of objects financed from the connection fee and from the tariff, there will be no problem with the need to adjust long-term tariffs.

As an alternative way to determine the connection fee, it is necessary to introduce a method based on the use of 2 indicators determined by the results of an annual survey:

§ The country's average real cost of connecting 1 Gcal/h load (base cost and multipliers for load density, climate, seismicity and remoteness).

§ The maximum level of payment for connection equal to the average cost of building an autonomous heat source by the developer (base cost per 1 Gcal/h and multiplying coefficients for the type of fuel, power, seismicity and remoteness) prevailing in the country. The indicator acts as a natural regulator: if the set payment for technical connection turns out to be higher, then consumers will build their own source.

The connection fee in a particular settlement can be set as the base (according to the first indicator) multiplied by inflation coefficients; load density in the connection area; climate; seismicity; remoteness, with an upper limit on the amount of the fee according to the second indicator (price formula).

The criterion for refusal to connect will be more than a twofold excess of the distance from the tie-in point to the connected object compared to the accepted base value. When connecting objects located at a greater distance, the TCO may charge a connection fee higher than the base rate in proportion to the distance, or, if interested in connection, keep it at the base level.

When connecting, the consumer should have the right to choose between one-time payment of the connection fee or an installment mechanism: reduced (or zero) connection fee, but an obligation for long-term heat consumption at a fixed free price (changed according to the price formula).

It is necessary to cancel the norm of establishing a connection fee of 550 rubles. when connecting buildings with a load of less than 0.1 Gcal / h. Unlike the electric power industry, it does not have any social meaning, but, on the contrary, leads to an increase in payments by socially unprotected consumers who pay connection costs through the tariff:

Individual residential buildings, the owners of which have the financial ability to build them directly in large settlements;

Small buildings, the heating of which is expedient to be carried out from non-centralized heating devices (their centralized heat supply is unprofitable even in the process of further operation).

In the complex development of territories, a competitive procedure for determining the supplier of thermal energy is preferable. The problem is that the criterion of the minimum connection fee is not an objective indicator of the quality of the proposal of the applicant for the implementation of heat supply to the area under construction. It is necessary to focus on the reduced costs, taking into account the cost of supplying thermal energy. The selection criterion can be the best proposed long-term heat price formula for a fixed connection fee. Standard conditions for such tenders should be developed with the definition of requirements for participants and conditions of applications.

Under the current model, if there is no technical possibility of connection, the developer must choose the option of waiting for the adjustment of the heat supply scheme or agreeing to pay the costs according to personal technical conditions. The choice must be made without having information either about the timing of the adjustment of the scheme, or the likelihood of making the necessary changes to it, or the amount of the fee for the first and second options. It is necessary to determine the procedure for providing the developer with the information necessary for the specified choice.

3.7. Deregulation

When connecting to industrial sources, sources of organizations for which energy supply is not the main activity, and heat supply systems built without taking into account construction investments in tariffs, state tariff regulation can already be canceled. The new consumer retains the right to build his own heat source, join the public heat supply system or an underutilized industrial enterprise source at a free price and an unregulated connection fee. Such a decision will increase the level of competition of heat supply systems.

IV. ENSURE COMPLETE PAYMENTS FOR THERMAL ENERGY

Decisions to increase investment attractiveness and develop heat supply systems cannot be fully implemented without improving the payment discipline of consumers.

4.1. Debts of residents of apartment buildings

In any settlement there is a part of the inhabitants who do not pay utility bills. If measures are not taken to ensure a high level of completeness of citizens' payments, then any tightening of the responsibility of management companies and heat supply organizations to each other will not provide a solution to the problem. The debt will accumulate with one or the other, depending on changes in legal norms.

Abroad, the problem is usually solved by the tough position of the courts when deciding on the forced eviction of citizens for debts. Television reports on such cases lead to an immediate result - the restoration of payments.

power outage

The most effective and efficient method of stimulating residents to pay on time is to turn off public service. But today it turns out that:

Heating and cold water cannot be turned off, hot water and gas are difficult;

The actual period from non-payment to the disconnection of the resource is at least 3 months;

When electricity is limited, a resident can only pay for it and demand its inclusion;

For unauthorized reconnection, materials can be sent to the court, which will award a fine of 1 thousand rubles, and only as a result of several appeals to the court can the defaulter be arrested for up to 15 days.

It is necessary to refine the model of dealing with non-payments in MKD, successfully used in Kazakhstan 25 years ago - linked payments (single payment document) without the right to non-complex payment, as well as power outages in apartments in case of non-payment of any type of resource.

Ensuring the possibility of full collection of payments by management companies

Organizations providing housing and communal services at the expense of maintenance and repair fees should be provided not only with compensation for costs, but also with a fair return corresponding to the level of risk of this type of activity and other market factors.

Currently, the inability to legally earn money is pushing management organizations to illegal schemes and attempts to save money at the expense of the quality of services provided. The transition of resource-supplying organizations to direct payments from citizens increases their costs, complicates the entire settlement system, and in fact removes responsibility for the accuracy of accounting from management companies.

The MKD management agreement should fix the rights, duties and responsibilities of each owner of the premises for maintaining the MKD in the proper order and managing the common property of the house, for paying for the supplied communal resources.

The Decree of the Government of the Russian Federation should establish a standard form of a management agreement, and the basic (initial) terms of such an agreement should be fixed, which are applied “by default”, if the owners have not made other decisions. Including the standard contract establishes the requirements and procedure for payment of resources delivered to the border of the house.

These initial (basic) conditions of a standard contract determine the procedure for the owners to fulfill their obligation to maintain common property, as well as all the main aspects of interaction between citizens, housing and communal services providers and resource supply organizations, including the procedure for distributing resources for general house needs, the procedure for repaying debts in the event of failure to make mandatory payments by any of the residents, for example, through the formation of a special insurance fund, etc.

Such initial conditions should imply the maximum level of protection of citizens with a cost corresponding to this level. These conditions will encourage owners to make responsible and independent decisions.

By purchasing an apartment in an MKD, the owner automatically joins the contract in force in such MKD.

It is important to make full collection of payments profitable for management companies. The current regulations determine that when setting tariffs for heat supply organizations, 2% of non-payments of the population are taken into account. It is necessary to bring the mechanism to its logical conclusion and, if the management company is responsible for the completeness of the collection, they should be legally defined as a commission of the Criminal Code for ensuring 100% collection of payments.

Sanctions for non-payment against the management company should be linked to effective sanctions against non-payers - individuals. The CM must be able to collect payments.

Necessary measures:

Increase in the amount of punishment for unauthorized connection of electricity after a power outage.

A multiple increase in the amount of fines for repeated unauthorized switching on of electricity;

In excess of the total debt individual for payment of all types of resources in the amount of 100 thousand rubles. consider cases in criminal proceedings;

Introduction of prepayment in case of violation of payment terms;

Permission to sell for debts not only municipal, but also privatized apartments, or forced transfer by the debtor of a share in the ownership of the apartment (increasing with further non-payment), interest and rent for the use of someone else's property.

A memo for residents on the time of introduction and types of sanctions for late payment should be widely disseminated.

Since any methods of distribution of payment for a communal resource between residents of MKDs have drawbacks, it is necessary to provide the residents themselves with the right to choose from several distribution options by decision of the general meeting. In the absence of a choice, the basic option is accepted, defined by the "Rules for the provision of public services".

Utility providers should be responsible for supplying goods at the entrance to the house (with appropriate payment) and not participate in any way in their distribution.

4.2. Debt of budget consumers

It is time to correct the budget legislation, providing for the mandatory sufficiency of the allocated limits for the payment of utility resources. They cannot be less than the level of consumption in previous years.

The overblown list of "non-switchable consumers" should be drastically reduced. For really non-disconnected consumers, a procedure should be introduced to confirm the need for such a status with the provision of bank guarantees for payment with the subsidiary responsibility of the relevant budget.

Responsibility for violations of heat supply in case of non-payment should be borne by non-payers or the one who entered them into the list of non-disconnected.

Currently, multibillion-dollar debts have been accumulated by organizations controlled by the state and municipalities (SUEs, MUPs, etc.). The restructuring of their debts in itself solves nothing, unless the financial source of their repayment is determined. Today, the main method is the bankruptcy of the heat supply organization and the "forgiveness" of all debts.

It is necessary to carry out a comprehensive analysis of the structure of debts of heat supply organizations and the reasons for their formation, dividing them by type. For each type, develop standard models of repayment or write-off. Since a significant part will be attributed to bad debts, it is necessary to find solutions for them, otherwise the bankruptcy procedure of debtors will be repeated endlessly.

Options:

Forced sale of municipal property for debts;

Tax incentives for the organization of the creditor;

Maintaining the level of costs included in tariffs, while reducing costs for a period significantly longer than the payback period.

The main mechanism is the subsidiary liability of the budget for the debts of subordinate enterprises or budget guarantees.

V. STATE REPORTING OF HEAT SUPPLY ORGANIZATIONS

Heat supply organizations submit more than a thousand reports a year to various authorities. The data of these reports are not synchronized either in essence or in time; they may contain values ​​of the same indicators that are different in form. At the same time, there are only about fifty primary indicators that are used to calculate most of the data for these reports.

It is necessary to radically change the sectoral reporting system of heat supply organizations. In order to minimize the cost of filling out reports, it is necessary to ensure the transition to one unified database of primary indicators, and on their basis any others can be determined. At the same time, linkage with the systems of GIS fuel and energy complex, GIS housing and communal services, GIS energy efficiency, databases of tariff authorities, Rosstat and municipalities should be ensured. It is necessary to organize the primary automated verification of the reliability of information.

As a task for 3-5 years, the transition to the use of a single information platform (database) for all economic entities of the industry and all authorities, functioning on the principle of a multi-table, should be fixed. Such a platform should replace all existing forms reporting and ensure automatic collection and updating of data, as well as their aggregation and transformation to meet the tasks of authorities and other stakeholders with different levels of access, in any form and for any period.

This will eliminate duplication of information and identify a single and understandable source of reliable data for all participants. The process of collecting and processing information will also be radically simplified, and the costs of economic entities and authorities will be reduced.

The amount of information presented in the GIS housing and communal services seems to be clearly excessive, given the number of objects on which information is transmitted and the time spent on identifying each input of information, the system will not be able to work in the previously planned volume. It is necessary to create a distributed system based on typical municipal and regional databases and calculation models.

VI. DEVELOPMENT OF HEAT SUPPLY SYSTEMS

6.1. Quality of heat supply schemes

The Federal Law "On Heat Supply" lays down the principle of development planning through approved heat supply schemes and investment programs of heat supply organizations.

The primary process of developing heat supply schemes is basically over. According to the results of their mass check in the quality system of NP "Energy Efficient City", less than 10% of the total amount can be considered as corresponding to state requirements. But the main success must be recognized as the very emergence of heat supply schemes. The openness of information, the formulation of problems and even the lowest quality of schemes are important as an indicator of the inability of specific municipalities and heat supply organizations to ensure the effective development of heat supply systems.

The task is to ensure the standard terms for updating schemes and their high-quality processing.

As an instrument of state and municipal regulation in the field of heat supply, schemes should be consistent with the overall goal of this regulation - to provide high-quality, reliable heat supply in the most economical way. Since quality and reliability can be ensured in a variety of options, it is the compliance with the economy condition that creates competition for development projects and determines the possibility of assessing the quality of the heat supply scheme.

The main difficulty for the authorized federal and municipal authorities is to ensure not only control over the timing of the development of schemes, but also their high quality, corresponding to the purpose. This means not just the formal existence of a document and compliance with state requirements of all sections of the schemes, but also creative work to find the best options.

When updating schemes, it is necessary to find development options in real conditions, and not justify the maximum amount of investment. The maximum effect must be achieved within the competitive level of tariffs. Understanding the existence of problems with financing the implementation of already developed schemes, municipalities can organize competitions for their updating with payment of performers for cost reduction while maintaining the planned effects.

It is necessary to ensure the continuity of the schemes by introducing the obligation to analyze the reasons for the failure to achieve the key indicators planned in the previous scheme and the overall efficiency of the heat supply in dynamics from the base year adopted during the initial development.

It is also necessary to introduce a requirement that investment programs must comply with heat supply schemes.

For heat supply systems recognized in accordance with the "Heat Supply Organization Rules" as unreliable and unreliable, the scheme should define a set of measures to ensure the prompt achievement of a reliable level.

It is also necessary to solve the problem of protecting the interests of investors who have begun to implement investment programs in case of changes in the investment conditions of heat supply schemes.

In practice, some municipalities deliberately either delay the development and approval of schemes, or easily overcome the procedure for public hearings and adopt schemes with significant violations, preferring to maintain existing practices:

Regular bankruptcy of municipal unitary enterprises without liability for accumulated debts;

Distribution of the load and budgetary assistance in favor of controlled organizations;

Leasing property to one-day firms, with their subsequent replacement with the same ones;

Operational management of heat supply with controllability of financial flows.

The Code of Administrative Offenses introduced administrative punishment for officials for violating the requirements for schemes and the timing of their development. At the same time, municipalities need to be protected from unscrupulous schemers who win competitions through price dumping. The development of schemes should be considered R&D with the relevant requirements for the qualifications of performers.

Tariff indicators can also be used to form terms of reference for the development or updating of heat supply schemes, with an instruction to the developer to find a development option with a tariff below the tariff indicator.

If the scheme has not been timely updated annually and it indicates excessive consumer loads for the coming year, the corresponding losses of the heat supply organization from incorrect tariffing should be compensated from the budget of the municipality.

It is necessary to cancel as unreasonable the provision introduced for price zones on heat supply schemes for individual heat supply systems, of which there can be dozens and even hundreds in the city. Without considering the settlement as a whole, it is impossible to find effective solutions for individual areas.

6.2. Antitrust regulation of development planning

The plans for the development of heat supply systems of settlements, justified in heat supply schemes, very often imply limiting the activities of one or more economic entities, including limiting the load and planned investments. Any development plan approved by the authorities limits the scope for competition based on excess capacity owned by different owners.

According to the logic of the law “On Heat Supply”, the competition of built capacities should be compensated by the competition of projects, the choice of which is based on one criterion - a lower present value of heat supply with an equal effect in terms of reliability and quality.

Violations of equal conditions for project competition include options for artificially lowering the estimated investment costs for the implementation of specific projects:

All types of budgetary assistance to specific heat supply organizations;

Construction or reconstruction of heat sources and networks at the expense of the budget with a gratuitous or preferential transfer of the constructed facilities to a heat supply organization on any legal basis;

Construction of block-modular boiler houses with minimal cost and short service life;

Understating the cost of connecting to gas networks for heat supply organizations affiliated with fuel companies, and even a complete denial of connection for other market participants;

Understatement by the investor-developer of the cost of boiler houses and heat networks for new construction facilities, with the aim of unconditionally including them in the heat supply scheme, instead of developing existing centralized systems.

There are also other methods of limiting the competition of projects:

Under equal or disputable economic conditions, the choice of the option of building boiler houses in violation of the legislative principle of the priority of cogeneration;

Obvious errors in the calculations of the effects of specific projects and the choice of development options without any economic calculations at all;

Ignoring the unevenness of projects in terms of reliability of heat supply, including the availability of reserve fuel, redundancy by sources, independence from external electrical networks;

Inefficient distribution of heat load in ring networks between heat sources belonging to different owners, used, among other things, to justify the inefficiency of the existing source and the need to build a new one;

Creating barriers to market access for new economic entities offering their own development projects.

The introduction of the antimonopoly regulation under consideration is hampered by the need to attract qualified experts and the prevailing stereotype that there is competition only in product markets.

Violations in heat supply schemes are often so obvious that there are no difficulties in the evidence base, but the practice of pseudo-justifications is constantly being improved. At the same time, in some cases, new facilities are built without justification in the schemes at all.

The methods of combating such violations include not only examination and antimonopoly prosecution, but also limiting the level of tariffs and fees for connection according to indicators and tariff formulas, improving the requirements for the development and approval of schemes, tenders for the right to connect the load in ring networks and in areas of mass development, expert analysis of the effectiveness of the use of budgetary funds.

6.3. Integrated development planning

It is necessary to ensure joint planning for the development of heat supply systems and other life support systems (electricity supply, gas supply). In particular, R&D of regions should assess the volumes and maximums of electric heating, the possibility of replacing it with other heating methods, or the use of heat pumps and heat accumulators of various types.

The mutual influence of heat supply systems and power supply systems in Russia is huge and has no analogues in the world. Heat supply schemes determine not only the development of heat networks, but also the construction of a thermal power plant. A critical analysis of the sum of heat supply schemes in the region as a whole will make it possible to predict the volumes of commissioning of distributed generation. In fact, the organization of planning from the needs of the city will make it possible to switch to fundamentally different methods of planning the country's energy, not "from above" - ​​by covering the need for energy resources at the expense of large federal stations and networks, but "from below" - by forecasting the needs of each settlement, determining the prospects for local generation and assignment to the federal level only to meet the missing needs.

The planning technology used today immediately at the level of a unified energy system leads to excessive investments, the creation of excess capacity in all elements of the energy systems and the preservation of a low level of efficiency of the entire Russian energy sector.

In gasified regions, the development of heat supply systems cannot be ensured without coordination with the development of gas supply systems. At the same time, today's procedure for connecting new or reconstructed heat sources to gas networks is extremely lengthy and non-transparent.

It is necessary to simplify bureaucratic procedures and define “queuing” rules for deficient regions, including the priority of the redistribution of released gas as a result of the implementation of energy-saving measures and optimization of the structure of energy sources.

The following issues must also be resolved.

The payment for shortfalls in gas intake and increasing coefficients for its excess consumption, which manifested itself for climatic reasons and as a result of energy saving at the facilities of the heat supply organization and consumers, was eliminated;

The requirements and incentives for the availability of reserve fuel at energy sources in the presence of a system-wide reservation have been worked out;

Comparative options for creating production and reserves of liquefied gas instead of reserve fuel in boilers and gas turbine plants have been worked out;

Cross-subsidization of domestic gas prices below boiler prices has been eliminated, when residents who receive heat from a centralized heating system compensate for the low cost of gas for residents who have their own domestic heating and hot water boilers (at an objectively higher cost).

Planning for the development of heat supply systems should be carried out taking into account energy savings for consumers. It is necessary to introduce requirements for linking energy saving programs and heat supply schemes.

The massive development of heat supply schemes for settlements has confirmed the problem of overestimated investment needs necessary to ensure the quality of heat supply and connect new consumers. Based on the current situation of overestimated coolant costs, excessive heat losses in networks and connected buildings, the schemes everywhere plan to increase the power of energy sources and the diameters of heating networks.

At the same time, energy saving programs provide for a reduction in heat consumption of connected buildings and losses in networks, and the release of capacity is usually much cheaper than the creation of a new one. It would be logical to give priority to the implementation of energy saving measures, but the existing system of state regulation makes it difficult to combine replacement processes.

The principles for introducing prices for power released in the process of implementing energy-saving measures should be determined. Prices should correspond to the demand for capacity for reuse or the possibility of decommissioning part of the energy facilities.

It is necessary to create a register of released capacity as a result of the demolition of buildings, their overhaul, replacement of windows with double-glazed windows, etc. Even more useful is a register of potential capacity release projects that can be implemented when needed. The identification of this potential and the definition of redistribution zones should be one of the main tasks of energy audits and energy saving programs.

6.4. Power supply for isolated areas

Up to 70% of the territory of Russia is not covered by federal electric networks, respectively, these areas are a priority for the development of small-scale energy, since there is simply no alternative for it. The cost of production of heat and electricity in these areas is extremely high and is determined mainly by the cost of imported fuel. Currently, the supply of such areas is almost completely subsidized at the expense of the federal budget.

It is in these areas that the use of local renewable energy resources, the use of cogeneration opportunities and energy saving in consumption is most promising. However, the budget code currently does not allow taking into account the savings from the implementation of such measures, at least for the payback period plus 2 years.

It is necessary to make changes to the budget code, allowing, when achieving an economic effect, to take into account the savings of the budgets of the upper levels distributed through interbudgetary transfers.

6.5. Individual heating points

The development of heat supply systems should be carried out taking into account the installation of IHS and the gradual elimination of central heating points.

The transition to ITP with an independent closed connection scheme on the consumer side and high-quality automation that takes into account the influence of heat, sun, wind and rain provides:

Possibility to select the temperature graph of the coolant personally for each building and provide the basic law of regulation - feedback, for example, according to the air temperature in a typical room or the temperature of the return coolant with the exception of underheating and overheating;

Independent determination of the start and end time of the heating season;

Improving the quality of hot water;

Preventing the penetration of water hammer from the heating network into connected buildings.

However, today heat supply organizations cannot include energy saving costs for consumers in investment programs, even if it is beneficial for them.

Despite the obvious benefits, the installation of IHS is often not supported by the owners of the premises. The problem is that ITPs often do not pay off by reducing the level of payments from a decrease in consumption. Since, in accordance with the Housing Code, ITP is the common property of apartment owners, the costs of their operation and repair must be paid by residents under a protected expense item - house maintenance, with its significant increase, which is perceived sharply negatively and is not associated with energy saving and even with some possible reduction in tariffs for thermal energy. As a result, cases of project implementation by consumers without budget financing are extremely rare.

The project is not supported by the majority of management companies due to the lack of predictable prices for the operation of ITP, responsibility for the safety of complex equipment, greater accuracy in determining the volume of heat carrier discharges inside the building and the fear of imbalances in the heat content of hot water.

There are significantly more effects from the project implementation on the part of the heat supply organization:

Elimination of hot water pipelines with a corresponding reduction in the cost of repairs and heat loss;

Reducing the length of the remaining quarterly heating networks;

Significant reduction in the cost of chemical water treatment (with the "closure" of the open scheme);

The ability to widely vary the temperature and hydraulic conditions in the heating network with the transmission of more power through existing networks and the unloading of circulation pumps;

Possibility of operation of heat networks with variable modes and qualitative-quantitative regulation, which will provide less mechanical stress on the pipelines of heat networks, in large systems, decommission part of the pumping stations and transfer boilers to the peak operation mode together with CHPPs;

Reducing the dangerous consequences of hydraulic shocks;

The possibility of organizing relatively cheaper and more reliable accounting;

Real control and prevention of drains of the heat carrier and hot water;

Increasing the sale of hot water with the replacement of electric apartment water heaters massively installed due to the low quality of hot water in open systems;

Elimination of the need for expensive reconstruction of the central heating substation when connecting new buildings;

The possibility of using low-power, reliable equipment, which leads to a decrease in total operating costs in the case of operation of the IHS by a heat supply organization;

The release of the premises of the central heating center and adjacent land plots.

Creating perfect heat supply systems without control systems in connected buildings is impossible. All successful modernization projects were implemented simultaneously in both heat supply and heat consumption.

One of the options for the implementation model of projects for the installation of ITP with the liquidation of the central heating station is the conclusion of energy service contracts between the TSO and the managing organization. To do this, it is necessary to develop an economic model and type of contract that will take into account all the positive and negative effects arising from the implementation of the project for consumers, management companies and heat supply organizations.

Since there are thousands of ITPs owned by heat supply organizations in the country, the issue of allowing heat supply organizations to gratuitously place devices for regulating heat consumption and preparing hot water in residential buildings and other consumers should be urgently resolved. The consumer, if possible, should not have the right to prevent the placement of such devices in their buildings at the expense of the heat supply organization.

6.6. Digitalization of heat supply systems

The peculiarities of heat supply are the rigid mutual influence of heat supply and heat consumption modes, as well as the multiplicity of supply points for several goods (thermal energy, power, coolant, hot water). The purpose of heat supply is not to provide generation and transport, but to maintain the quality of these goods for each consumer.

This goal was achieved relatively effectively with stable coolant flow rates in all elements of the system. The “quality” regulation used in Russia, by its very nature, implies a change only in the temperature of the coolant. The emergence of demand-controlled buildings has ensured the unpredictability of hydraulic regimes in networks due to changes in the input costs of connected buildings. Complaints in the neighboring houses had to be eliminated by excessive circulation and the corresponding mass overflows.

The hydraulic calculation models used today, despite their periodic calibration, cannot provide for accounting for deviations in costs at building inputs due to changes in internal heat generation and hot water consumption, as well as the influence of sun, wind and rain. With the actual qualitative-quantitative regulation, it is necessary to “see” the system in real time and provide:

Control of the maximum number of delivery points;

Reconciliation of current balances of supply, losses and consumption;

Control action in case of unacceptable mode violation.

Management should be as automated as possible, otherwise it is simply impossible to implement it. The challenge was to achieve this without undue expense of setting up checkpoints.

Today, when in a large number of buildings there are measuring systems with flow meters, temperature and pressure sensors, it is unreasonable to use them only for financial calculations. The “digital” heat supply management system should be built on the generalization and analysis of information “from the consumer”.

When creating the automated control system, typical problems of outdated systems were overcome:

Dependence on the correctness of calculations of metering devices and the reliability of data in unverifiable archives;

The impossibility of bringing together operational balances due to inconsistencies in the time of measurements;

Inability to control rapidly changing processes;

Non-compliance with the new information security requirements of the federal law "On the Security of the Critical Information Infrastructure of the Russian Federation".

Modern heat supply management systems allow for simultaneous technological and economic management with effects that significantly exceed the costs of their creation. To ensure the prompt implementation of such systems, it is necessary to introduce an appropriate section into the heat supply schemes.

6.7. Service life of new heating networks

The real level of tariffs today ensures the replacement of about 2% of heat networks, which requires a change in fundamental approaches to the quality of structures and construction of heat networks, with the transition to a 50-year service life.

In Russia, significant negative experience has been accumulated in the operation of heat networks in polyurethane foam insulation, which shows that when the insulation is moistened, the corrosion processes of steel pipelines occur much more intensively than when other structures are used. Since such networks are laid at shallow depths and without a reinforced concrete channel, damage to them occurs with the release of hot water to the surface, which is extremely dangerous.

Realizing the problem, the leading power supply organizations have formed their own increased requirements for the associated design of the pipeline - PPU insulation - sheath and carry out purchases in accordance with them. Most manufacturers, unable to meet these requirements due to the imperfection of the technological process, dispute the results of competitions, including in antimonopoly structures, substantiating claims by their compliance with the requirements of GOST. The best manufacturers fulfill this requirement, and without increasing the cost of production.

A detailed update of GOSTs and sets of rules that define the requirements for the manufacture, design and construction of heating networks is required, with the introduction of additional requirements that ensure a long service life.

VII. HOT WATER SUPPLY

7.1. Legislative regulation of hot water supply

Hot water supply directly from heat sources, from central heating points (CHP) and from individual heat points belonging to heat supply organizations, has always been considered as an integral part of the heat supply process. The heating of tap water in individual heating points was not regulated by law as a commodity production (tariffication, connection, investments, etc.).

With the adoption on December 7, 2011 of the federal law "On Water Supply and Sanitation", hot water supply in closed systems began to be regulated by the specified law, and in open systems - by the law "On Heat Supply". This innovation has led to the emergence of many problems in all areas of activity of heat supply organizations, as a rule, providing hot water supply:

Organizational, including those related to the emergence of two types of contracts (heat supply and hot water supply) with the problem of distributing the supply of thermal energy between them;

Investment related to the attribution of some objects simultaneously to heat supply and hot water supply systems with the corresponding confusion in the investment programs of various organizations and in areas of responsibility;

Tariffs, including a complex and incomprehensible to consumers methodology for calculating tariffs for thermal energy and hot water, unbearable for small organizations.

The practice of applying the law "On Water Supply and Sanitation" confirmed the insurmountability of the above contradictions.

It is necessary to return to the original semantic structure: to abandon the concept of the “hot water” resource (with the preservation of hot water supply services) and transfer the norms of regulation of centralized hot water supply to the legislation on heat supply, from which they were once withdrawn.

7.2. Hot water metering

Hot water consists of several components: cold water or coolant and heat energy for heating.

The applied methods of dividing the difference between the thermal energy accounted for in the consumed hot water and recorded by the common house metering device lead to the fact that the total cost of hot water in neighboring houses can differ significantly.

It is necessary to establish that the delivered heat energy and coolant (cold water) to the border of the MKD must be paid for by the resource supply organization according to metering devices, regardless of the further purposes of using these resources (hot water supply, heating or water supply, respectively).

The owners of the premises should have the right to decide for themselves how to determine the cost of the hot water service provided, provided that the entire volume of utility resources supplied to the entrance to the house (heat energy, coolant / water) will be paid to resource supply organizations. At the request of the consumer, additional metering devices can be installed to separate from the entire volume of purchased thermal energy the one that was spent on heating water. However, other options are also possible, without installing expensive redundant metering devices.

In connection with the decision of the Supreme Court of the Russian Federation, which created a precedent for a complete refusal to pay for heat costs for losses in risers and heated towel rails, it is urgent to refuse to link these losses to the consumed m³ of hot water, as biased “in physics”. In regulatory documents, the consumption of thermal energy for hot water supply should be divided into 4 components:

In water pouring out of a faucet. Its specific heat content is very stable, while maintaining the standard temperature of hot water, it depends only on the temperature of cold water and the average for the country is 0.05 Gcal/m³.

Water actually used for general house needs and filling the system, its heat content is the same as that of all hot water;

Thermal energy used for cooling in risers and heated towel rails, it is very stable in absolute value at any time of the day and year, is a certain characteristic of the building and depends on the area of ​​pipes and heated towel rails;

Thermal energy attributable to the imbalance between apartment water meters and a common house hot water meter (metering errors, low-quality water meters, theft of hot water, drains).

If there is a general house accounting for hot water, it is necessary to adopt a simple method of distributing it among the residents of MKD: thermal energy for hot water supply is calculated according to the real stable standard of its heat content, and the rest is distributed as for heating by m².

7.3. Transition to closed heat supply systems (hot water supply)

In accordance with the legislation, a widespread transition to a closed scheme should be carried out before 2022. At the same time, there is no legally fixed source for financing projects to close existing open systems.

To ensure the payback of projects, it is important to identify mechanisms that would create economic incentives for both consumers and heat suppliers to install individual heating points (ITPs).

In particular:

Determining the price of heat for consumers connected through IHS at a level lower than for consumers without IHS;

The possibility, when installing IHS at the expense of heat supply organizations, to conclude contracts with consumers by analogy with energy service companies, when TCO has the opportunity to maintain the current level of payments for thermal energy for the payback period of the IHS installation;

The tariff rate for the heat carrier must take into account all the real costs of its preparation and be significantly higher than the tariff for cold tap water, up to the introduction of a mechanism for increasing the tariff for hot water with an open scheme, similar to increasing coefficients for thermal energy with unaccounted consumption.

7.4. Hot water temperature regulation

The current requirement to maintain the temperature of hot water at the point of water intake at a level not lower than 60 ⁰С predetermines serious technical problems in many heat supply systems. These are deposits and corrosion in the entire chain from the place where hot water is heated to the tap.

In other countries with centralized heating systems, sanitary standards allow maintaining the temperature of hot water at the level of 50-55 ⁰С, with a short-term increase at night to the level of 65-70 ⁰С for anti-epidemic purposes.

Since tests of this method in Russian conditions have already been carried out by a specialized organization and a positive result has been obtained, it is necessary to make changes to sanitary norms. This requires extensive explanatory work in the media about the benefits of innovation for the residents themselves (cost savings, burns, reliability).

7.5. Reduction of terms of shutdown of hot water

The required duration of disconnection of a particular section of networks for hydraulic testing can be calculated taking into account the following factors:

Length and configuration of networks;

Number of jumpers;

Reservation by sources;

Damage in previous years;

The volume of preventive measures taken;

Planned volume of network replacement.

It is necessary to develop a methodology for determining the required duration of summer shutdowns and determine the need for such calculations during the annual updating of heat supply schemes.

In most settlements, hot water supply in the summer is unprofitable. It is necessary to make the early switching on of hot water cost-effective, and not at the expense of the consumer. The solution could be the introduction of two-part tariffs. Earnings from early switching will increase several times compared to the one-part tariff option, and accordingly, long summer shutdowns will become economically unsustainable.

With long networks, lack of jumpers, unsatisfactory condition of networks, it is possible that the standard outage period in a particular area may not be enough for high-quality preparation for heating season. It is necessary to limit the average shutdown duration for the settlement, with the possibility of variation in different areas.

On the other hand, it is urgent to abandon the unprepared reduction in the shutdown time, since real practice shows that this provokes a sharp increase in the damage to networks in the winter.

VIII. COGENERATION

8.1. Problems of cogeneration

In the Russian energy legislation, a rather rare tool is used to directly indicate the priority of a specific technical solution - the combined production of heat and electricity (cogeneration). At the same time, there are practically no legislative norms that ensure the implementation of this priority, and the share of combined generation at public thermal power plants has decreased by a third over 25 years. The decrease in the supply of thermal energy to industry was not compensated by the connection of the load of buildings under construction, connected mainly to boiler houses. Accordingly, the generation of electricity on thermal consumption also decreased.

Today, 528 thermal power plants with heating equipment generate 470 million Gcal of thermal energy per year, which is 36% of the total volume of district heating (1285 million Gcal/year). The rest of the heat is supplied from 96,000 heating and industrial heating boiler houses with an average capacity of 4 Gcal/h and an average efficiency of only 75%.

Even the commissioning of modern CCGT units did not allow the Russian energy sector to reach the level of 1994 in terms of the efficiency of fuel energy at the country's thermal power plants (57% in 1994 against 54% in 2014). At the same time, it is CHP plants with CIT at the level of 58 to 67% that provide the overall energy efficiency of thermal power plants. The CIT of the most common steam turbine equipment without cogeneration is from 24 to 40%, which is at least two times lower than in the pure cogeneration mode of operation of the worst CHP.

Cogeneration, recognized worldwide as the most efficient technology production of electricity and heat, turned out to be the most “neglected” sector in the unified energy system of Russia today. A significant part of thermal power plants are chronically unprofitable and large energy companies are trying to get rid of them. A significant part of the generating equipment withdrawn from the market under competitive power take-off (CTO) procedures is also concentrated at CHPPs, and power units built under CSAs mainly operate without thermal energy supply.

At the same time, outside the unified energy system, consumers in increasing volumes are building CHPPs for their own needs with characteristics that are significantly lower than those of the equipment that is brought out by the CCM. There is a danger that most of the large consumers of electricity will gradually leave the market, which will lead to an increase in the tariff burden for the social sector.

It turned out to be a paradoxical situation: in the WECM generator market, where consumers are replaced by regulators (Market Council, System Operator, Federal Antimonopoly Service, Ministry of Energy), CHPs turned out to be unclaimed, and consumers themselves in the market of available technologies choose cogeneration.

The decrease in the competitiveness of the “big” energy industry in Russian conditions is due precisely to the refusal to use the advantages of cogeneration, a technology, in essence, intended for countries with a cold climate and local high population density. The problem is not just in the imperfection of the rules for the functioning of the electricity market, but in the incorrect formulation of the primary goals and principles that ensured the economic discrimination of CHPs.

The liquidation of a significant part of the public CHPP will be a serious blow to the country's economy due to the increase in the cost of heat and electricity, significant one-time costs for the construction of replacement capacities and an increase in the capacity of the gas transmission system. Today, there is no systematic assessment of the consequences of decommissioning CHPPs. The problem, having no solution at the federal level, is “dumped” to the regions in the form of payment for “forced” generation and construction of replacement boiler houses.

At the same time, it is the development of cogeneration that can be considered as an anti-crisis measure that ensures the availability of energy resources for consumers. It should be understood that, despite its own problems, cogeneration is today the only way to ensure anti-crisis containment of growth in heat and electricity tariffs using affordable market methods.

A fundamental change in the attitude towards cogeneration will allow:

Ease the problem of shortage of natural gas during severe cold snaps, since during this period the heat generation at the CHPP increases, including on reserve fuel, and equipment under a large electrical load is loaded in an economical heating mode, with maximum fuel savings;

To ensure the necessary increase in electric power directly in the existing consumption nodes, without excessive costs for high-voltage networks, with the creation of maneuverable thermal power plants with the possibility of deep regulation of electric power without leaving the heating mode;

Ensure the power supply of cities during emergency shutdowns of power and gas supply systems (work for a dedicated electrical load, including life support facilities, the possibility of using reserve fuel, guaranteed heat supply);

By reducing the cost of heat production, release funds for the modernization of heat networks.

Russia already has a powerful CHP structure and can ensure their priority development with significant effects of reducing the cost of heat and electricity. The scenarios being implemented today lead to the degradation of thermal power plants and their closure, often with the costs of replacement measures higher than the costs of possible modernization.

The development of cogeneration should become a higher priority project in our conditions compared to renewable energy sources, for which there are gigantic areas of use - zones without centralized energy supply. By dealing with RES only in them, Russia will solve the problem of the availability of energy resources for remote settlements and facilities, as well as ensure that there is no technological backlog, with the spread of only economically justified technologies in other territories.

It is necessary to estimate the period during which renewable energy technologies can become economically more profitable for Russian conditions. This will allow to determine priorities for power engineering and the industry as a whole, including an assessment of:

Necessary terms for extending the life of existing power plants;

Demand for own production of powerful gas turbines and new coal-fired power units;

The pace of energy digitalization.

8.2. Necessary changes in the electricity market model for the efficient operation of CHPPs

The current market model defines the principle of equality of generators, regardless of the distance of electricity transmission from the power plant to the consumer. CHPPs located near the consumer actually subsidize the development and maintenance of interregional electrical networks necessary for the transmission of electricity from the state district power station, hydroelectric power station and nuclear power plant. In other countries, even with a much smaller territory, this circumstance is taken into account by additional preferences for thermal power plants, the more they are necessary and economically justified in our conditions.

In the Soviet period, the task of reducing the cost of electricity transmission was solved precisely by building thermal power plants directly in load centers, in cities and at large industrial enterprises. Even the Moscow region was provided with external power supply only for a third of the need. CHPPs provided loads in the cities of location, reliable power supply of critical facilities, fuel reservation, and reliable heat supply.

As a result of the reform of the electric power industry, CHPPs began to perform functions that were unusual for them to provide electricity and power to the wholesale market. As a result, the transport component in the final tariffs increased, becoming comparable to the cost of electricity generation. If we do not take into account the cost of fuel, then the cost of electricity transmission exceeded the cost of generation, determining a high level of tariffs for end consumers.

Savings from the competition of power plants in the WECM are today offset by the costs of developing networks to ensure this competition.

When launching the CHP, the principle of the need to remove inefficient power was adopted, without taking into account the fact that the same CHP equipment can be inefficient in the condensing mode, and in the heating plant, with any equipment service life, have an efficiency unattainable with the use of any other most modern technologies. .

It is necessary to solve the problem of market stimulation and technical support for the possibility of using the most economical modes of energy sources operating in a combined cycle, with the solution of the problems of modernizing a part of the CHPP, comprehensive accounting of system-wide effects, demand management and optimizing the ratio of base and peak capacities.

Today's KOM does not take into account that CHPPs have objectively high costs for maintaining capacity, while the cost of electricity in the heating cycle is lower. Accounting for the total objective costs would show a much greater economic efficiency of CHP. According to the results of the long-term CCM in 2019, the CHPP will receive 10% less funds in the form of capacity payment than in 2011. This encourages energy companies to try to raise the missing funds in the heat market, which, in turn, can destroy the district heating market, reducing its competitiveness compared to local heat sources.

The division of the previously unified trading platform between ATS (electricity) and System Operator (capacity) eliminated the very possibility of optimizing total prices in the interests of the consumer. Moreover, the "System Operator" received the right to load power plants within the limits of the selected capacity, without being responsible for the efficiency of generation modes.

It is necessary to determine the conditions under which the CHP plant can enter into direct contracts with consumers. The most profitable consumer for CHP is the one who consumes both electrical and thermal energy at the same time, that is, the population and industrial enterprises using process steam. A variable tariff menu for packaged supplies would encourage consumers to turn off their own boilers.

Such long-term comprehensive contracts could be concluded with consumers by both the owners of CHPPs and heat supply organizations, which simultaneously perform the functions of power sales in terms of electricity. These long-term contracts could become the main tool for reducing the risks of investors carrying out the modernization of CHP plants and reduce the risk cost of investments.

Today it is possible to enter into direct retail contracts for the supply of electricity only from CHPs with a capacity of less than 25 MW, which puts them in a privileged position with larger CHPs (electricity consumers are not charged a network tariff for transmission through high voltage networks). Today, small CHPPs, even with the worst economic and energy efficiency indicators, benefit from the absence of a network tariff. The country is massively building small thermal power plants with technical characteristics at the level of the beginning of the last century, and the equipment of more advanced thermal power plants is removed through the CMA procedure, or loses its heat load.

In Eastern European countries, the problem of cost-effectiveness of cogeneration sources was solved a long time ago by creating special market rules. CHP plants in these countries, as a rule, operate in cogeneration mode. Condensation working is considered "forced generation" and requires a special permit.

CHP owners can supply electricity under direct retail contracts or participate in the market. All electricity produced in the combined cycle is subsidized through "green certificates" secured by increased environmental charges for the use of uneconomical power plants.

It is fundamentally important that most of the EU countries have achieved such development successes over the past 2 decades. The new EU directive on energy efficiency makes it mandatory to have a national plan for the development of cogeneration. It is necessary to study the possibilities of applying this experience in Russian conditions.

At the first stage, it is necessary, at a minimum, to determine the criteria for classifying CHPPs as cogeneration plants and to allocate qualified cogeneration capacity. For each CHP, work out the possibility, necessity and technical limitations for working according to the heat schedule. It is also necessary to assess the possibilities and consequences of a more significant heat load of stations with the transfer of large boiler houses to parallel operation.

It seems necessary to adopt the following comprehensive solutions that provide a real priority for cogeneration.

To carry out the development of a scenario for the development of the country's energy sector based on cogeneration, the calculation of the system-wide potential for savings and the consequences for consumers;

Develop amendments to the laws “On the Electricity Industry” and “On Heat Supply” aimed at harmonizing the rules for the operation of the electricity and heat energy markets, the general scheme for the development of the electric power industry, schemes for the development of heat supply and energy supply to the regions;

Make changes to the WECM regulations to create conditions for the possibility of CHP operation according to the heat schedule;

Ensure the use of mechanisms for financing the modernization of CHPPs in the presence of cross-system savings that ensure the preservation of the current level of tariffs for consumers for electricity and heat;

Introduce a mandatory procedure for considering projects for the development of cogeneration, as an alternative to large projects for the construction of electrical networks, boiler houses, condensing stations;

To take into account the system-wide effects of the operation of the CHPP in the developed changes to the rules for conducting the CCM;

Develop standard solutions and specific business projects for the development of thermal power plants, allowing to achieve a balance of interests of the unified energy system of the country and specific municipalities.

8.3. Organization of joint work of CHP and boiler houses

Quantitative regulation, adopted in Western European countries, made it possible to use the scheme of joint operation of CHP and boiler houses. When it gets cold, first the flow rate of the heat carrier from the thermal power plant increases, and then the boiler houses are launched, which provide the missing amount of the heat carrier, pumping it into the general network with their pumps.

As a result of the mass use of "temperature cutoff", we also have at low outdoor temperatures not qualitative, but quantitative regulation with an increase in flow (diameters of pipelines of heat networks, designed for overestimated contractual loads, usually allow this). A well-chosen level of temperature cutoff will make it possible in many cities to implement schemes for the joint operation of CHPPs and boiler houses, which today operate separately, without the construction of expensive dedicated heating networks, without great expense.

Often, to ensure such a scheme, it turns out that it is enough to use the backup jumpers already available in the heating networks, only a serious adjustment of the hydraulic regimes is required. The massive application of the project is constrained by the lack of specialists, the lack of awareness of the heads of energy companies and the absence of two-part tariffs.

For the wide dissemination of the project, it is necessary to solve the problem of summing the transport tariffs of several heat supply (heat network) organizations for intersystem heat transfer by forming a common tariff for the transferred volume of heat energy.

IX. HEAT MANAGEMENT COORDINATION

In accordance with Article 14 of the Federal Law of the Russian Federation dated October 6, 2003 No. 131-FZ “On the General Principles of Organization of Local Self-Government in the Russian Federation”, the organization of heat supply to the population within the boundaries of a settlement refers to issues of local importance, that is, this task is entrusted to local authorities self-government.

Under the "organization of heat supply" should be understood the creation of conditions for the reliable and safe functioning of heat supply systems within the framework of the rules set at the federal level. This term should be disclosed in the regulations.

The main task of the federal authorities is to create a unified regulatory and regulatory environment that provides the most cost-effective way for safe, reliable and high-quality heat supply. The powers of state authorities include state regulation (tariff, antimonopoly, and so on), control and supervision.

At the same time, in fact, activities in heat supply, like in no other industry, are regulated in detail by the state. And not only in accordance with the legislation on heat supply, but also in accordance with regulations in the electric power industry, housing and communal services, water supply, etc.

Regulation of heat supply is distributed among federal, regional and municipal authorities. A single body responsible for the functioning of the industry has not been defined. Even at the federal level, these functions are divided between the Ministry of Energy of Russia and the Ministry of Construction of Russia. Coordination is carried out through the procedures for harmonization of regulations and regularly created working groups on heat supply problems under the federal authorities. This approach did not even provide an objective analysis of the problems and high-quality legal regulation.

There are also no non-governmental organizations capable of performing the functions of the industry coordinator.

Taking into account the social significance of heat supply and its decisive role in ensuring the life of the country's population, it is necessary to determine the federal authority, which is the general coordinator of issues on heat supply and heat consumption.

Its main tasks in the field of heat supply should be:

Development and implementation of methods of regulation and deregulation of the industry;

Determination of requirements for the reliability of heat supply as a market process.

Monitoring and analysis of the reliability of heat supply based on a unified methodology;

Studies of heat supply problems, law enforcement practice;

Monitoring, analysis and generalization of practices for the recovery of enterprises in a crisis (pre-bankruptcy) state, ensuring the availability of information on methods for improving activities, disseminating successful regional experience;

Development of business models for the organization of heat supply, development of competition with the weakening of state regulation;

Finding a balance of interests of suppliers and consumers;

Preparation of draft regulations;

Organization of coordination of heat supply schemes with schemes and programs for the development of electricity and gas supply systems, ensuring their quality;

Development of standard projects for improvements in heat supply systems, including the systematization of available information, the implementation of the necessary R&D and testing, the development of quality standards and methodological materials, the development of economic models “tied” to the project, the elimination of barriers that prevent its mass application and further monitoring of application;

Control of the organization of work in the constituent entities of the Russian Federation to determine the sets of measures and organization of work in settlements with unreliable heat supply systems.

X. CRITERIA FOR SELECTING UNIFIED HEAT SUPPLY ORGANIZATIONS

For the effective functioning of heat supply systems, the law “On Heat Supply” introduced the concept of a single heat supply organization (STO) as a single window for consumers, with responsibility to them for the quality, reliability and development of the system interacting with consumers and concluding agreements with suppliers within the system.

It is essential that the selection criteria provide the necessary protection for the interests of both heat consumers and heat and transmission service providers.

The ETO status should be assigned to an organization that owns the largest thermal assets in the heat supply system and is financially stable, which guarantees the fulfillment of obligations to consumers and suppliers.

The main technological criteria that a full-fledged ETO must meet:

The ability to control the hydraulic and temperature conditions in the heat supply system (the presence of measuring instruments at the control points and the ability to use these readings);

Possibility of regulation of hydraulic and temperature regimes in the system in order to maintain the required parameters for all consumers;

Availability of mode service;

Availability of a dispatching service that controls heat supply modes;

Availability of operational personnel to eliminate violations of heat supply;

Availability of a communication and notification system for consumers;

Availability of an electronic model of the heat supply system and personnel able to work in it;

Ability to respond quickly to customer complaints.

The powers of the ETO should be more clearly defined. An indicator of the inefficiency of the ETO is the refusal of industrial enterprises to supply heat to residential areas with the need to build replacement heat sources, the refusal of developers to connect to the district heating, disconnection of existing consumers, and a decrease in reliability indicators.

Today, the main incentive to obtain the functions of the STO is the control over financial flows. When solving the problem of non-payments, these functions can become a burden. Already today, in many, even large settlements, there are no applicants for obtaining the status of UTO.

It is necessary to pay for the performance of the functions of coordinating the work of the STO system by allocating the corresponding costs in the tariffs and introducing regulatory requirements for agreements to ensure coordination, with the advent of the relevant rights and obligations of the STO. In case of renunciation of the functions of the STO of all the main heat supply organizations (or deprivation of their status), the municipality will be able to hire a third-party qualified organization to perform the functions of the STO. Such a right should also be provided for in regulatory documents.

It is necessary to eliminate the contradiction between the law "On Heat Supply", which provides for the appointment of UTS for a heat supply system and the "Rules for the Organization of Heat Supply", which provide for the right to assign UTS for several systems. Despite the priority of the rule of law, municipalities assign UTOs to several systems and even to the entire settlement in order to organize the averaging of consumer payments. If norms are introduced into the regulatory documents that allow organizing a “boiler” in other ways (banking methods, use of the SRC), then the ETO will lose its unusual functions of a “boiler holder”, returning to its original purpose as a coordinator in a connected heat supply system. In isolated systems with one heat supply organization, the appointment of an ETO becomes meaningless.

A separate decision requires the appointment of ETO in heat supply systems located in several municipalities, or even two subjects of the federation. The actual presence of two ETOs in such systems leads to the presence of two tariffs for the transmission of thermal energy and their summation when supplying heat from a neighboring municipality or region.

XI. CONCESSION AND RENTAL

During the transition period from socialism, the weakening of the role of the state was not compensated by the development of market mechanisms, which caused a crisis in heat supply, primarily as a result of a sharp decrease in funding. The decrease in revenues due to the simultaneous decrease in production volumes and the share of public funding could not be accompanied by an adequate reduction in expenditures at the same pace. The state has lost the possibility of concentrating funds to maintain the efficiency of the inefficient heat supply system and, moreover, has no funds for its technical modernization. At the same time, the need to ensure the reliability of heat supply predetermines in many cases the need for significant investments, which is possible only if market conditions are ensured.

It is necessary not only to declare the importance of the arrival of serious investors, but also to ensure predictable interaction through regulatory agreements, the inadmissibility of excessive requirements for the investor, otherwise financial speculators will take their place. Speculative behavior of potential investors is also facilitated by contradictions in legislation and non-market regulation of tariffs.

At the same time, heat supply can function quite successfully with different types of organization, but general principles are unanimous: the public sector must be adapted to market conditions, and in the private sector, the state must provide framework regulation in the interests of all members of society.

In order to exclude corruption, it is advisable to transfer the preparation and holding of competitions for concession and lease from the municipalities to third parties - organizations that have specialists included in the current "State Register of Specialists in Organizing and Conducting Bidding".

In many cities, the presence of a “boiler” tariff ensures its acceptable level due to the high tariff component of the municipal enterprise and the low one of the private heat supply organization. The transfer of municipal property to a concession under the condition of a long-term tariff deprives the municipality of the possibility of system optimization with projected cost reduction in the “expensive” part of the heat supply system and redistribution of released funds to the underfunded part of the system in order to increase its reliability. The terms of tenders for the right to concession should provide priority to such optimization projects.

XII. INDUSTRY SCIENCE

Over the past 25 years, scientific support for activities in the thermal power industry has been completely eliminated. This caused great damage to the economy of the country. An industry scientific school in heat supply does not exist today. Attempts to use the competitive selection of organizations or state management organizations were unsuccessful. For such tasks, the problem is not the choice of performers, but the search for personalities and the formation of a research team.

At the state level, it is necessary not only to organize the search for and support of already partially implemented developments for the industry (this principle is currently guided by the Russian Ministry of Education and Science and Rosnano), but to formulate new tasks for feasibility studies.

It is necessary to move on to solving complex problems that simultaneously require technical, economic and managerial solutions, including:

Research of the problem and setting of perspective tasks;

Formation of minimum technical requirements;

Market capacity assessment;

Project management organization.

In today's conditions, it is difficult to expect significant state funding for sectoral scientific research, since heat supply, like the entire energy sector, is not included in the state priorities of scientific and technical policy. Financing by the Ministry of Energy of the Russian Federation through mechanisms similar to CSAs, partially replacing the termination of payments for newly built facilities, may become real.

Source: www.rosteplo.ru

Approaches to the Heat Supply Development Strategy approved by the working group

• June 7, 2016
• 733

“At present, there are a large number of issues in the field of heat supply, the solution of which must be ensured at the legislative level ...”, - said Yury Lipatov, First Deputy Head of the United Russia faction.

The meeting of the working group on the development and adoption of the "Strategy for the development of heat supply and cogeneration in the Russian Federation for the period up to 2020" was held in the State Duma.

Opening the meeting, Yury Lipatov, First Deputy Head of the United Russia faction, emphasized: “Currently, there are a large number of issues in the field of heat supply, the solution of which must be ensured at the legislative level. One of the main problems requiring urgent solution is the issue of CHP operation in modern market conditions. At present, the activity of combined heat and power plants, which produce two products per unit of fuel: heat and electricity, is not regulated between the laws “On Electricity” and “On Heat Supply”. As a result, the efficiency of CHP operation is lost. In this regard, the Government needs to coordinate actions and establish interaction between the Ministry of Energy and the Ministry of Construction, Housing and Communal Services of the Russian Federation to address this long overdue issue.”

Expressing his opinion in support of the Strategy's approaches, Dmitry Vakhrukov, Deputy Director of the Department for State Regulation of Tariffs, Infrastructure Reforms and Energy Efficiency of the Ministry of Economic Development, drew attention to the need for wider disclosure in the Strategy of solving problems of municipal heat supply.

Deputy Chairman of the Board of NP Market Council Vladimir Shkatov noted that Deputy Prime Minister A.V. Dvorkovich returned to the Ministry of Energy of Russia for revision the project "Energy Strategy of Russia for the period up to 2035" due to the lack, according to the Deputy Prime Minister, of clear prospects for the development of energy beyond the 5-year horizon.

According to V. Shkatov, linking all programs for the development of energy systems is a task for the future, and at present it is necessary to develop and adopt Strategies for individual industries and it is very correct that in the draft Strategy for the Development of Heat Supply and Cogeneration in the Russian Federation for the period up to 2020 it is proposed to link the work of the markets of electric and thermal energy through the solution of the problem of CHP.

Summing up the meeting, Yu.A. Lipatov noted that the problems of heat supply, which always appear at the junction of interaction between departments, the Government of the Russian Federation in the matter of coordinating their activities is not doing enough active work. In these conditions The State Duma of the Federal Assembly of the Russian Federation and the largest party faction in the State Duma is forced to draw the attention of the leaders and federal executive bodies and the Government of the Russian Federation to this.

This year, on February 4, the second meeting of the section on legislative support for heat supply of the Expert Council under the Energy Committee was held in the State Duma of the Russian Federation, where the “Strategy for the development of heat supply in the Russian Federation for the period up to 2020” was discussed.

The version of the Strategy proposed for discussion was generally approved by all participants of the meeting, therefore, it was proposed to create a working group of representatives of federal executive authorities and experts from the professional community as soon as possible to finalize the provisions of the Strategy and adopt it as an official government document.

Commenting on the results of the meeting, the head of the section, the first deputy head of the UNITED RUSSIA faction, Yu. Lipatov, noted: “Today, issues that are extremely important for the industry were discussed. The first version of the draft strategy for the development of heat supply, posted on the website www.rosteplo.ru for a wide discussion, aroused great interest, both among professionals and the public. Taking into account the results of the discussion in early February of this year, the second version of the strategy was prepared. The participants in the discussion were unanimous in their opinion that, firstly, it is necessary to form a base on the degree of reliability of heat supply systems in the regions, settlements and various districts of the Russian Federation.

Secondly, it is necessary to develop an adequate model of long-term tariff regulation. Indeed, at present, the existing model is being formed on the basis of the already established tariff base, which does not always reflect the required level and sufficiency of tariff solutions. If a heat supply organization is currently underfunded, then no long-term model will be able to bring it to break even. Therefore, the principles of formation of the tariff base should be clearly defined.

Another issue requiring an immediate solution, according to the general opinion of experts, is the need to prescribe a system for the transition from a state of underfunding to a state of sufficient funding. A solution to this issue may be the introduction of a system of indices in absolute terms. And here the main goal is that the heat supply organization should become a single center for ensuring the reliability and quality of heat supply in a particular settlement.

Also an important topic, which was comprehensively discussed today at the session of the section, was the strategic issues of cogeneration development. At one time, the combined production of heat and electricity was focused on the maximum overall effect for consumers located in the heat supply zone of the CHP. However, electricity market rules do not take into account the technological features of CHP plants and the overall effect of combined generation on consumers.

The efficiency of electricity generation today is achieved when the CHP works according to the heat schedule. The main difficulty of CHP operation in the energy system is a significant difference in the schedules of consumption of electrical and thermal energy, both during the year and during the day (seasonal and daily).

Operating on this moment the rules of the wholesale electricity and capacity market regarding the decommissioning of equipment do not take into account the peculiarities of CHPP operation in the heat market. If this problem is not solved now, then in the near future we may face the fact that the operation of thermal power plants will simply become unprofitable. This will gradually lead to the gradual decommissioning of the thermal power plant and the general “boiler house” of the country. An attempt to compensate CHP losses from operating in the electricity market by increasing the cost of heat will lead to CHPs being uncompetitive in the heat market. Of course, this issue cannot be resolved all at once. This requires gradual and step-by-step work, which will be continued. And, I hope, by the end of the spring session, legislative initiatives will be proposed to resolve these issues.”